2025 The SLUP St. Louis, Missouri

Full Document

City of St. Louis Strategic Land Use Plan

of the Comprehensive Plan

Planning & Urban Design Agency of St. Louis

Adopted by the City of St. Louis Planning Commission as the land use element of the Comprehensive Plan on February 12, 2025.

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This Strategic Land Use Plan was created with the participation of over 1,700 people and formally adopted by the resident-led Planning Commission in [month] 2025. While the previous version of the SLUP, adopted in 2005, offered initial inspiration, this updated SLUP is fully revised to be grounded in the current experiences, challenges, and aspirations of St. Louis residents.

The 2025 SLUP was created:

By honestly confronting disparities that plague our city, and ensuring that each planning decision is made with an eye toward economic justice;

By embracing and seeking to enhance our assets, including walkable neighborhoods, residents’ sense of connection to each other, and our rich history and diverse culture of the city;

In partnership with other City departments, community organizations, and other leaders who have been active in the process and who contributed their technical expertise;

As a framework for other comprehensive plan elements (such as Transportation & Mobility, Sustainability) that will build on this land use plan to create a more holistic vision for the City’s future;

With humility, by acknowledging that certain planning decisions are not appropriate for a citywide plan, but best made through neighborhood planning involving deeper dialogue and partnership with community members;

In a grounded optimism that St. Louis has great potential for growth and revitalization that can only be cultivated through careful, strategic steps in the right direction;

In a spirit of collaboration, knowing that to make strategic decisions means being intentional about how land use decisions, policy decisions, and investments all work together to move towards a vision for St. Louis; and

As a broadly-shared resource that can be used not just by the City (as legally required), but also by neighborhood groups, developers, partner organizations, and all of the groups who influence the shaping of St. Louis’s built environment.

Every American city has a history of plans: big plans and small plans; good plans and bad plans; public plans and private plans. St. Louis is no exception. This history of planning shows us, time and again, that planning is as imperfect as it is powerful: a plan is only as strong as the process and voices that helped shape it, and only useful if it is followed; what happens next is critical.

The SLUP sets strong aspirations for how St. Louis will evolve, but it isn’t just about defining where we want to go; it’s about taking affirmative steps in that direction. Just as the creation of this plan required a sustained effort by many, many people across our city, bringing it to fruition will also require ongoing shared effort, commitment, and focus. So our collaborative work together continues – for our part, the Planning and Urban Design Agency will next:

Immediately begin using the new SLUP to evaluate rezonings, redevelopment plans, variances, and all of the other formal land use policy decisions that come before the City;

Partner with and support other departments, agencies, and community organizations in achieving the goals of the SLUP through policy change and other action;

Advance our work to develop neighborhood plans in close partnership with community members. All of the current and upcoming planning areas are focused in North St. Louis to advance the city’s economic justice goals by ensuring that disinvested parts of our city have a clear community-driven vision for neighborhood improvement;

Take the long-overdue step to overhaul our City’s Zoning Code and Map, ensuring that the rules for land use match our community’s goals and modern development and legal realities, and that development processes are more predictable for all parties involved (including, and especially, community members);

Continue building out other elements of the comprehensive plan (focused on Transportation & Mobility and Sustainability & Climate) to provide the holistic guidance St. Louis needs to fully realize our potential;

Set a schedule to review the SLUP on a regular basis, making adjustments over time as needed to align with new neighborhood plans, changes in needs due to changing climate, and other amendments.

As you explore the SLUP’s designations, descriptions, and recommendations in the document ahead, we hope you find a next step as well. Where can your investment help work towards these aspirations? Where can your attention help align efforts toward these goals? We created the SLUP to serve as a tool to catalyze and guide change in St. Louis, and we look forward to it being used by our rich ecosystem of committed changemakers. We won’t reach these aspirations overnight, but we will reach them together.

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For more information about what is included in the SLUP, see page 19 [plan overview]

Table of Contents

Core Elements

Additional Elements

Introduction

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What is the Strategic Land Use Plan?

The Strategic Land Use Plan (SLUP, pronounced SLOOP) is a core policy guide for land use and one important tool for shaping investment and change in our built environment. It provides an opportunity to communicate a clear vision for land use that policies, plans, actions, and investments can support. You can think of it like a “constitution” for land use; it’s a high-level document that will continue to be updated and amended, but it lays the foundation for decisions the City makes.

While the SLUP can’t do everything on its own, it is critical because land use shapes all kinds of experiences in the city, including where people can live, how easy it is to access the things people need, what health impacts areas have, how resilient we can be to increased heat and flooding due to climate change, and more. The SLUP celebrates the many unique, dense, walkable urban neighborhoods of St. Louis and offers a framework for better connecting them. It also emphasizes the importance of re-investing in disinvested areas and aligning land use with other planned investments in transit, business development, infrastructure, and resilience.

Why Did the SLUP Need an Update?

A lot has changed in St. Louis since the current Strategic Land Use Plan (SLUP) was first created in 2005. The updated SLUP reflects the opportunities, challenges, and development dynamics facing our city today. While the City has been continuously amending the 2005 SLUP, this holistic update is a chance to comprehensively consider how our land use can best reflect St. Louis's current conditions and aspirations. This SLUP reflects the current priorities of city residents, including things like walkability, climate resilience, and transit-oriented development.

In this update, there was an opportunity for the new document to be more accessible and usable by a wider range of people – making it a valuable tool not just for City departments but also residents, community groups, and others working to improve St. Louis. This update does that in multiple ways, including providing more visual examples and having clear definitions for land use designations. This update also includes additional detail on things like city structure, density, urban form, resilience, and equity.

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The updated SLUP is different from the previously adopted SLUP in that it:

• Is aligned with contemporary best practices for land use planning,
• Includes more specific recommendations on form, including design guidelines,
• Is illustrated by a map that provides clarity on how big ideas fit together citywide,
• Was created through broad community engagement with the public and partners,
• Incorporates detailed recommendations from adopted neighborhood plans,
• Includes allied strategies and policy recommendations to guide implementation,
• Shares guidance for how future neighborhood plans will update and/or complement the SLUP, and
• Will support a holistic zoning code overhaul once adopted.

SLUP Update Process

The 2025 update to the Strategic Land Use Plan was created during an 18-month process. The process was designed to learn from past plans and processes, be informed by existing conditions, be guided by input from the St. Louis community, and to set the groundwork for future comprehensive planning initiatives. For more information about how the city of St. Louis community was involved in this update, please see page 142.

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REVIEW OF EXISTING PLANS & DOCUMENTS So many plans have been created and adopted before this one. Each one was reviewed to ensure that what the SLUP recommends is in keeping with what other plans have recommended.

ANALYSIS OF EXISTING CONDITIONS Planning for the future means knowing what’s happening in the present. The team thoroughly analyzed St. Louis’s housing, transportation, resiliency, and more.

VISION, GOALS, AND STRATEGIES What are people’s goals for land use in St. Louis? The public in St. Louis weighed in to create a shared vision and a set of goals and strategies to ensure that the SLUP advances the vision of St. Louis.

UPDATED STRATEGIC LAND USE MAP In addition to rethinking the land use designations and descriptions, the updated SLUP applies those designations to the city of St. Louis in a way that is aligned with current conditions and future aspirations.

ADOPTION

REVIEW OF THE 2005 STRATEGIC LAND USE PLAN The previous SLUP was created in 2005 and amended more than 20 times while it was in use. How well did it work? The team analyzed the 2005 SLUP to determine what an updated SLUP might do better.

ENGAGEMENT & COLLABORATION The 2025 SLUP was built on wisdom from the people of St. Louis. Read Community Engagement to learn more about our engagement and collaboration.

DETAILED DESCRIPTIONS OF LAND USE CATEGORIES For the SLUP update, the existing land use designations and their descriptions were rethought and updated.

ALLIED STRATEGIES FOR IMPLEMENTATION These allied strategies are recommendations for policies or practices that should complement the more regulatory components of the SLUP and support the implementation of the vision and goals of the SLUP.

STEERING COMMITTEE MEETINGS

WORKING GROUP MEETINGS

PUBLIC WORKSHOPS / POP-UPS / SURVEYS

History of St. Louis’s Land Use Planning

This update to the SLUP is responding to the long history of past plans that have shaped the city; some of those decisions have resulted in positive changes, while other decisions have caused great harm. All of them have shaped St. Louis.

This timeline outlines some of the key moments in the history of land use planning in St. Louis from the early 20th century to the present.

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1907

1907: The St. Louis Civic league created “A City Plan for St. Louis,” the first attempt at a comprehensive city plan in the United States.

This was the first time the city was treated as an integrated whole rather than individual pieces to be planned separately. The plan aimed to attract newcomers with both civic and commercial improvements to maintain St. Louis’s status as a major American city. It focused on the following issues: a group plan for municipal buildings, an inner and outer park system, civic centers, street improvements, a Municipal Art Commission, and legislation necessary to implement the proposed plans.

The 1907 plan was never fully realized, but the ideas it presented shaped the city’s development through the 20th century.

1918

1918: The city’s first zoning code was created.

St. Louis was second only to New York among the major American cities to adopt industrial/residential zoning.

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1923

1923: Harland Bartholomew makes major plans for St. Louis

With an $87 million improvement package, city planner Harland Bartholomew implemented major changes in the city’s infrastructure and open spaces, including the park that would eventually become the Gateway Mall. These plans designated funding for street improvements, sewer construction, river channeling, parks and playgrounds, public hospitals, firehouses and equipment, rail and auto bridges, public markets, waterworks upgrade, powerplant, and the municipal auditorium and downtown plaza and memorial.

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1947

1947: The City Plan Commission created a new comprehensive city plan

Under Harland Bartholomew, a new city plan was adopted in an attempt to guide the city’s expected growth for the next 50 years.

The plan focused on the following changes:

• Creating a stricter single-use zoning code
• Designating more land for single-family units to spread out residential density
• Designating “obsolete” and “blighted” areas for urban renewal
• Constructing highways through the city to allow for heavier traffic
• Creating more parks and open spaces throughout the city

It’s important to mention that this plan had underlying agendas that were harmful to the advancement of equity and social justice. The designation of certain areas as blighted contributed to displacement of economically disadvantaged people, many of whom were people of color, and exacerbated segregation within the city. We can still see the lasting, problematic impacts of this plan in the makeup of the city of St. Louis today, and therefore equity and social justice are important parts of the vision of the 2025 SLUP.

2005

2005: The Strategic Land Use Plan (SLUP) was adopted

The 2005 Land Use Plan was intended to improve the quality of life for people who live and work in St. Louis by encouraging appropriate types of development and preservation in clearly defined locations. During the nearly 20 years it was in use, the 2005 SLUP was amended over 25 times.

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2025

2025 SLUP

The 2025 SLUP advances a vision of St. Louis being a city that is equitable, thriving, and growing, to the benefit of all current and future residents, by fostering land use that is urban, optimistic (yet realistic!), strategic, and implementable.

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Here are a few key qualities of the New SLUP

Read more about these qualities on page 24.

The Strategic Land Use Plan helps guide and shape how change happens, laying a foundation for the decisions the city makes about land use. These key qualities describe how this update to the SLUP will shape the next 25 years of changing land use in St. Louis.

1. The SLUP is Yours:

This update to the SLUP was developed with people who care about St. Louis. The experiences, expertise, and dreams of the people of St. Louis guided the creation of this plan and will continue to shape its implementation and impact for years to come. The SLUP lays out aspirations that seek to build upon our rich culture of community-based efforts. It offers everyone involved in the development process, including individual residents, community groups, and small and large developers, a shared vision so that the city can move in the same direction toward these goals.

2. The SLUP is Urban:

Many current residents (and potential future residents!) want to live in areas that are walkable and where they feel connected to their neighbors and to the history and culture of the city; this plan calls to strengthen and rebuild those qualities across our 62 square miles. In contrast, the 1947 Comprehensive Plan for St. Louis played a significant role in pushing the city toward a more suburban style of development. This plan, and other planning and development efforts of the era, reflected a national trend toward suburbanization, the development of automobile-centric infrastructure, and segregation. The SLUP, on the other hand, believes that doubling down on the qualities that make St. Louis distinctly urban—and undoing many of its mistakes—the city can reverse population decline, reconnect communities, and thrive.

3. The SLUP is Optimistic (Yet Realistic):

As residents and visitors know, St. Louis has many challenges. Development and infrastructure often prioritize automobiles, creating hardship for pedestrians and transit users. Damaging floods are increasingly common. Neighborhoods are not always connected. Downtown and other parts of the city have high levels of vacancy or land uses that directly interfere with more positive change, stability, and development. And St. Louis is still too segregated, especially by race. Yet, St. Louisans are optimistic about the future, and there are many opportunities for change and to build on St. Louis's strengths. The SLUP takes an optimistic view that change is possible, including stabilizing and modestly growing our population, while acknowledging and addressing our history and the issues the city faces. This change is a long-term effort that will take dedication and attention, but it can be done.

4. The SLUP is Strategic:

The SLUP uses the wisdom of residents, data about our city, and insights from other recent planning efforts to prioritize what should be built where. The SLUP identifies where land uses should go by determining what uses are appropriate for which areas, where uses can support and connect to existing and planned assets, and what choices about uses can best mitigate and prevent environmental harm. This strategic approach allows the whole city to benefit, making the most of the opportunities we have.

5. The SLUP is Implementable:

The SLUP is a guide that sets a long-term vision. It’s also a robust tool for helping to catalyze and guide change in St. Louis. From the day it's adopted, it will be in use, guiding change in St. Louis. At the same time, land use is just one piece of the puzzle. The SLUP points to and recommends other important next steps, including additional changes to policies and practices, as well as sharing resources for residents, City departments, and developers alike. Many, many people will be needed to bring the long-term vision of the SLUP to life, and this plan lays a solid foundation and clear direction for their work and collaborations ahead.

A key part of the City’s Comprehensive Plan

What is a Comprehensive Plan?

A comprehensive plan is a policy guide for a city's evolution authorized under state law, as well as our local code. Comprehensive planning is an important part of shaping the future of a city, and St. Louis is building the vision and the guidelines to shape our city for generations to come.

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How does the Strategic Land Use Plan fit into the Comprehensive Plan?

Land use is a foundational element, but other citywide components, such as transportation, sustainability, housing, and economic justice, will and should be developed to guide the future of the city of St. Louis.

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How do Neighborhood Plans fit in?

The SLUP is a citywide land use plan that paints the broad brushstrokes for the whole city and considers how different parts of the city fit together into one big whole.

In neighborhood or district plans, more localized communities or groups of communities imagine, create, and adopt a more specific, holistic vision for the future of their neighborhood. These plans go into greater detail about implementation and include more nuance about priorities and specific visions. Neighborhood plans provide an opportunity for residents to express their goals for their neighborhoods and guide redevelopment in ways that the SLUP cannot capture.

The City of St. Louis Planning Commission adopts both neighborhood plans and the SLUP. Both documents provide guidance in review of various land use policy changes and other Planning Commission decisions. A requirement of the neighborhood plans is a proposed land use map for the neighborhood that shows the neighborhood plans’ vision and goals. The SLUP may be amended based on recommendations from adopted neighborhood plans.

Plan Overview

This document includes all the core elements of the Strategic Land Use Plan, as well as additional context, background about how this plan was created, and allied strategy recommendations.

The core elements of the Strategic Land Use Plan include:

The vision and goals for land use: Set the intention for what St. Louis will be like in the future (page 46).

The map: Illustrates the big picture for the future of land use on the map of St. Louis city. Assigns specific designations to each lot in St. Louis city based on the shape, size, and future vision for that location (page 56).

The land use designations and design guidelines: Categories that call for different types of conditions and uses (page 70).

Additional Elements

In addition, the Strategic Land Use Plan includes other information that helps make the plan a useful reference and resource for the people of St. Louis, including:

Project process and community engagement that went into development of this plan

Existing conditions analysis that documents current conditions in the city that helped guide plan decisions

Allied strategy recommendations for other changes in policy, practice, and procedure that support the aspirations set out by the SLUP and guide implementation

How will the Strategic Land Use Plan be used?

The primary use of the Strategic Land Use Plan is in development and land use policy decisions. When someone wants to make a change to policies that shape how land can be used in St. Louis city, the SLUP is used as a legal guide by relevant City departments to evaluate land use decisions. City staff then make recommendations to inform the decisions of the resident-led Planning Commission and the Board of Aldermen. Specifically, the SLUP is required to be used in the following decisions:

1. Rezoning: A rezoning is an amendment or change in the boundaries of the Official Zoning District Map, which specifies the rules for what is allowed in different parts of the city. A rezoning may be initiated by either a motion of the City Planning Commission or by the filing of a petition by the owner of a property within a zoning district. In either case, rezonings are evaluated for their compliance with the SLUP.

2. Zoning Variances: A variance is an exception to or deviation from the zoning code. When a variance is granted it stays with the land and can be transferred to future owners. Alignment with the SLUP is one lens that the Board of Adjustment uses in its evaluation of variance requests.

3. Redevelopment Plans: Redevelopment plans are used by the City to authorize incentives like tax abatement for redevelopment projects in blighted areas. They are most commonly prompted by developer requests for incentives, but they can also be used proactively to guide development to priority areas.

4. Zoning Text Amendments: An amendment to the zoning text changes the rules within the zoning code for all relevant districts or types of property.

5. Zoning Overlay Districts: Overlay zoning is a regulatory tool that creates a special zoning district on the zoning map, which identifies special provisions in addition to or instead of those in the underlying base zone.

6. Right-of-Way Vacations: A vacation is when the City transfers the public right of way (like streets or alleys) to a private property owner.

When City staff evaluate such actions, they have to consult the SLUP to see if the proposed land use is compliant. They will look at the address of the proposed land use change, see what designation it’s in, read the description of the designation, and make a recommendation.

A tool for inspiring strategic land use.

In addition to its role in review and evaluation, the SLUP can inspire people to have new ideas about land use. When someone is looking to invest in the city, build a new building, or participate in a new development, they can look at the SLUP to understand where in the city their idea might make sense. They might also look at the SLUP to understand how their efforts could build upon other assets or investments, such as transit, or avoid risks, such as flooding.

A blueprint for a new Zoning Code.

The SLUP helps set the foundation for the long-overdue step to overhaul our City’s Zoning Code and Map, ensuring that the rules for land use match our community’s goals and modern development and legal realities and that development processes are more predictable for all parties involved (including, and especially, community members).

ENTER OUR FEARLESS SLUP-ER HERO

The illustrations below show exactly how the SLUP plays into a development decision (albeit fictional).

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THIS LAND HAS REMAINED VACANT FOR YEARS BUT NOW PEOPLE ARE MAKING PROPOSALS FOR NEW USES.

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BUT WHAT COULD THIS LAND BE USED FOR?

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ONE PERSON PROPOSES A NEW SHINY OFFICE TOWER.

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ANOTHER PERSON PROPOSES A NEIGHBORHOOD-SCALE TANNERY.

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SOMEONE ELSE PROPOSES A LOCAL AMUSEMENT PARK!

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HOWEVER NONE OF THESE CONFORM WITH CURRENT ZONING. TO PROCEED A REZONING APPEAL MUST BE FILED.

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IN ORDER TO DETERMINE WHETHER A ZONING CHANGE MAY BE ADOPTED. THE SLUP MUST BE CONSULTED.

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ACCORDING TO THE SLUP, THIS LAND IS DESIGNATED AS A "MEDIUM-INTENSITY NEIGHBORHOOD."

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THE MEDIUM-INTENSITY NEIGHBORHOOD IS "PRIMARILY RESIDENTIAL" AND HAS "BUILDINGS WITH A MAXIMUM HEIGHT OF 3 STORIES."

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THIS IS FRANKLY NOT IN KEEPING WITH THE HISTORIC CHARACTER

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IT ALLOWS OTHER USES LIKE PARKS, SHOPS, AND SCHOOLS THAT DO NOT GREATLY ALTER THE EXISTING CHARACTER...

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SO ACCORDING TO THE SLUP, NONE OF THESE PROPOSALS FOR ZONING CHANGES SHOULD BE ACCEPTED.

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THANKS TO THE SLUP, NEW DEVELOPERS WERE FOUND THAT SUPPORTED APPROPRIATE SCALE NEIGHBORHOOD INFILL.

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In its legal role as part of the Comprehensive Plan, the SLUP has certain powers, but it can’t do everything on its own. Other elements of the Comprehensive Plan (like transportation or sustainability) and other policies, entities, and practices need to align to address the issues and opportunities facing St. Louis.

What The SLUP can do vs. can’t do